English Devolution and Community Empowerment Bill

Baroness Thornhill Excerpts

Thursday 26th March 2026 Lords Chamber

[Lord Jamieson (Con)]

My Lords, this amendment is in my name and that of my noble friend Lady Scott of Bybrook. There is near universal agreement that a “brownfield first” strategy is the right one. Not only does it save green fields but new developments benefit from existing infrastructure, homes are delivered where they are needed most, it supports regeneration and, finally, it is better for the environment. However, greenfield sites offer the potential to landowners and promoters of huge planning gain, from a few thousand pounds an acre as agricultural land to hundreds of thousands once planning permission is received—hence their willingness to push and challenge the system. Once planning permission is received, building on it is so much easier for developers. As a result, in effect we have a default “greenfield first” approach, losing precious green belt and productive farmland.

If the current crisis has taught us anything, it is that we cannot be dependent on imports; we need to grow our own. Yesterday’s announcement on local government reorganisation, with urban areas expanding into their rural hinterland, will only encourage building on green fields rather than focusing on the urban footprint. For years, Governments of all colours have tried to prioritise brownfield first, but guidance alone is simply not enough; we need something more forceful. We need it in legislation. If we make this a requirement of strategic plans, mayors and combined authorities will need to address the issues facing brownfield in their areas up front, to make it easier to speed up and deliver brownfield development. Without it, greenfield will continue to be the default, the environment will suffer, more money will need to be spent on infrastructure and we will continue to lose valuable agricultural land. We will also fail to deliver the homes we need where they are most needed, continuing the housing crisis, with young people unable to afford their own home and increased homelessness.

In Committee the Minister raised a concern that this would be used as an excuse to delay development of sites. In fact, the very opposite is the case: this is all about getting more sites and more homes faster and where they are needed most. When we are facing a housing crisis and we are failing to build, and that failure is biggest in urban areas such as London with the greatest need, it can only be right that we build more in urban areas through gentle densification and repurposing of redundant sites. I beg to move.

[Baroness Thornhill (LD)]

I will say a few words in general support of the principle of this amendment. We supported it during the passage of the Planning and Infrastructure Act, so it would make sense to do so here.

It was good old John Prescott who first promoted “brownfield first” and, ever since then, councils have been encouraged to promote it, for all the reasons that the noble Lord, Lord Jamieson, has just outlined. But brownfield alone cannot meet our housing needs, and that is the real issue I have with this. Brownfield development is more costly. Decontamination and development costs alone make it much more costly. There is a fear of lopsiding development, and I would be interested in further discussion—but clearly not here now—about how we square the very emotional debates we have had over the last day on Report with rural issues, the lack of housing in rural areas and how people need it, for all the reasons given. This amendment squarely says, “Leave the green areas alone”, so I have a little problem with it, although we on these Benches absolutely support the overriding principle.

Given the large area of combined authorities, there will clearly be a massive range of sites, covering all sorts of greenfield and brownfield sites, so I will leave the Minister with the thought that perhaps the Government need to give more incentives to develop brownfield first. There are lots of ideas that I am sure she is aware of that would encourage that more, but the key thing is that brownfield alone will not meet housing needs. Rural areas need more housing, but clearly we need strong protections for our green belt and our countryside.

[Baroness Taylor of Stevenage (Lab)]

My Lords, I thank the noble Lord, Lord Jamieson, for Amendment 121 about brownfield land. I agree that we should always use brownfield land wherever possible. As succinctly articulated by the noble Baroness, Lady Thornhill, one reason for promoting the development of town centres and cities is that there is more brownfield land there. We are trying to promote that kind of development as part of the reorganisation process, but there will always be a need for some development in rural areas. We have a rural housing crisis that we must tackle, and there are other uses, such as data centres, for which it might also be appropriate.

Once the relevant provisions of the Planning and Infrastructure Act are commenced, combined authorities and combined county authorities, including those with mayors, will be required to prepare a spatial development strategy. These strategies will provide the framework for local plans and will identify broad locations for growth, key infrastructure requirements and housing targets for individual local authorities, but they will not allocate sites for development. In preparing a spatial development strategy, authorities will be required to have regard to the need for consistency with national policy.

The effective use or reuse of brownfield land is strongly encouraged in the current National Planning Policy Framework, which expects substantial weight to be given to the benefits of developing suitable brownfield land within existing settlements. The revised National Planning Policy Framework, mentioned earlier, goes further still. New proposed policies on development within and beyond settlement boundaries are designed to promote a more sustainable pattern of development by directing growth to appropriate locations, maximising the use of suitable urban land and taking a more selective approach to development outside of settlements.

Mayors will also have the ability to grant upfront planning permission for specified forms of development on identified sites through mayoral development orders. We want the legislation to be sufficiently flexible to allow mayors to use these powers across a range of uses and land types in line with their ambitions for growth. It is right that we continue to promote the effective use of previously developed land. However, we should be cautious about introducing overly rigid legal requirements that may not be appropriate in all circumstances and could risk constraining the growth that this country needs. While I understand the intention behind the amendment, it is for these reasons that I do not consider it to be necessary or proportionate. I would ask the noble Lord to withdraw it.